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Politics, public opinion and evidence in changes to the governance of fire and rescue Politics, public opinion and evidence in changes to the governance of fire and rescue

Politics, public opinion and evidence in changes to the governance of fire and rescue - PowerPoint Presentation

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Politics, public opinion and evidence in changes to the governance of fire and rescue - PPT Presentation

Dr Peter Eckersley Katarzyna Lakoma Nottingham Trent University Annual Conference on Fire Related Research and Developments RE18 West Midlands Fire Service HQ Birmingham 13th November 2018 Overview of presentation ID: 760399

fire public services governance public fire governance services narrative pcc change police west local cambs problem model mercia power

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Slide1

Politics, public opinion and evidence in changes to the governance of fire and rescue services

Dr Peter EckersleyKatarzyna LakomaNottingham Trent University

Annual Conference on Fire Related Research and Developments (RE18)

West Midlands Fire Service HQ, Birmingham

13th November 2018

Slide2

Overview of presentation

Slide3

The genesis of PFCCs

Statutory duty to collaborate

Six PCCs taking over responsibility for Fire and Rescue – the ‘governance’ model

Each PCC set out a business case to evaluate different models: status quo; ‘representation’; ‘governance’; and ‘single employer’ and consulted locally

Where the PCC wishes to change governance arrangements, the Act requires an assessment of why (

i

) it is in the interests of economy, efficiency and effectiveness,

or

(ii) it is in the interests of public safety for this to happen.

Essex and Northants relatively uncontroversial

Local opposition in West Mercia, North Yorkshire, Cambridgeshire and Staffordshire, but all approved; Hertfordshire abandoned

Other areas have recently proposed a change in governance, e.g. Norfolk

Slide4

Public consultations

Slide5

Consultation responses I

Force areaAgreeDisagreeResidentsElected repsFRS staffPolice staffCouncilsResidentsElected repsFRS staffPolice staffCouncilsNorthants57%63%92%62% 35%30%4%5% West Mercia64%33%37%036%67%67%8Cambs53%3n/an/a039%1n/an/a2Herts52%11n/an/a134%0n/an/a3

Consultations to seek approval for PCC decision to opt for Governance model: i.e. no other options presented

Slide6

Consultation responses II

 1 – no benefit2345 – significant benefitRepresentation4218 15   11 14Governance348101830Single employer4513151215

Essex

 

Staffordshire

North Yorkshire

Elected reps

FRS staff

Police staff

Residents

Public/VCS

Overall

Online

Residents

FRS staff

Police staff

Overall

No change

44

60

41

49

34

50

n/a

n/a

n/a

n/a

n/a

Representation

14

19

5

10

13

11

40

22

27

48

29

Governance

26

12

26

23

30

22

48

61

59

27

55

Single employer

16

9

28

17

23

17

12

17

14

25

15

Slide7

The outlier

Slide8

CIPFA analyses of business cases

Limited to assessing the impact of the selected governance model on

VfM

(the 3Es) and public safety

Results largely inconclusive, and don’t appear to be influential

Very hard to verify many of the promised financial savings or judge the impact on public safety

Where opinions are expressed, they are sceptical: “it is our view that the scale and timing of the savings included in the LBC… are ambitious and not supported by any detailed plans.” (West Mercia)

None damning enough to warrant a re-think

Slide9

So if there is limited public support for change, and business cases are unconvincing, why do reform proposals get the go-ahead?

Slide10

What is the narrative/story around potential change?

 

In favour

Opposed

"Financial" narrative

"Performance" narrative

"Accountability" narrative

"Cuts" narrative

"Ain't broke" narrative

"Power grab" narrative

Setting (policy problem)

Insufficient resources

Lack of coordination

Lack of scrutiny and accountability

Insufficient resources

Problem 'invented' by PCC

PCC wants more power

Villains (cause the problem)

Not specified

Current structural arrangements

Current governance arrangements

Central govt

PCC

PCC

Victims (harmed by the problem)

The public

The public

The public

The public

The public

The public

Heroes (potential fixers of the problem)

PCC

PCC

PCC

Front-line public servants

None: there is no problem to fix

Opponents of change to governance

Plot (process of developing the solution)

Governance model will save money

Governance model will improve joint working

Elected PFCC will make services more accountable

Better funded public services

Two services distinct

but collaboration can be good

Think about who should be in charge of public services

Moral (solution to the problem)

PFCC

PFCC

PFCC

Trust your public servants

More important issues facing fire and police

Many heads are better than one

Slide11

Financial narrative

“It’s about time one person was in charge of both services and got a grip on the money being wasted” (Essex)

“The primary reason for supporting the PCC’s proposal expressed by respondents to the Consultation Questionnaire was ‘Financial considerations (67.2%).” (West Mercia)

“If the admin and call centres can be more efficient thus leaving more resources for the front line I see this as a benefit. The same goes for the buildings - if one hub will work for all and the need for half-empty buildings goes again we can put more money into the front line.” (Northants)

Our police and fire services need to find efficiencies at the moment. Working together more would help them find those efficiencies in support functions, rather than on the front line” (

Cambs

)

“Sounds like a good idea as both the Police and Fire brigade seem to be under pressure from the government trying to reduce their budgets, so maybe they will be stronger combined.” (Herts)

Slide12

Performance narrative

“It is logical for all the emergency services to be integrated for both speed of delivery and monetary reasons.” (

Cambs

)

“This provides an opportunity for more joined up work at a strategic level.” (

Cambs

)

“More opportunities for early intervention and prevention work. Greater value coming from quicker and easier sharing of information.” (Northants)

Slide13

Accountability narrative

“Evidence suggests that single, streamlined governance can accelerate reform and improve public visibility, accountability, transparency and effective scrutiny.” (

Cambs

)

“I think the transparency of a combined commissioner will be a lot more beneficial to Fire and Rescue as opposed to how we often get lost amongst other priorities within the County Council.” (Northants)

“I would suggest that democracy and accountability is improved by having a directly elected Fire Commissioner rather than appointed local councillors acting as an FRA.” (PCC, West Mercia)

Slide14

‘Cuts’ narrative

“I am deeply concerned about the proposals for ‘estate rationalisation’. This clearly indicates the closure of local police stations and locating the services in Fire Stations.” (Staffs)

“This is clearly a money saving exercise.” (Essex)

“This is just an exercise to save money not improve our protection.” (

Cambs

)

“The government will use it as an excuse to reduce the budget even more as services are being shared thus making both emergency services unable to cope with the demand and growth of the county.” (Northants)

“Both need more money. No need to work together” (West Mercia)

Slide15

‘Ain’t broke’ narrative

“There is no reason why EP and ECFRS can't share knowledge and best practice without the PCC needing to take on both roles.” (Essex)

“Services provided by the Fire Brigade have been operating effectively. Therefore why risk this?” (

Cambs

)

“I would like to see these two essential services remain as they are and interacting as they already do so well… I see no advantage in change for change’s sake.” (Herts)

“The Commissioner’s Local Business Case does not make a compelling argument as to why it is necessary to adopt the Governance Model to address the stated shortcomings in the pace and scope of collaboration between the Police and the Fire and Rescue Service.” (North

Yorks

)

“The two work together at the moment and if something is not broken why change.” (Northants)

Slide16

‘Power grab’ narrative

“It is clear that the proposal to move responsibility for the Fire and Rescue Service is being made for purely political reasons and to support the narcissistic ambitions of an individual politician, who has created a false impression of the current situation” (Staffs)

“We live in a democratic society. This proposal gives one person far too much power over such important services.” (

Cambs

)

“There is no need for this. It politicises the Fire Service. Empire building by the Police Commissioner” (Herts)

“Anxious when control is transferred to one person, rather than an elected authority as it weakens democracy. Would like to see the Police Authority return.” (North

Yorks

)

“Mr Campion seems to be way off the mark and power crazy” (West Mercia)

Slide17

Do these stories matter? Or do these reforms just illustrate the exercise of political power?

Slide18

Conclusions

Essex and Northamptonshire had specific local reasons for governance reform, and little local opposition

Other force areas were much more controversial, business cases were unconvincing and there was often significant local opposition

Yet only Hertfordshire was abandoned - and at the PCC’s instigation – all others were approved by the Home Office

Suggests that P(F)CCs may be more powerful than many first anticipated

Thus far, only Conservative PCCs have requested a change of governance. What does this tell us about the politics of PFCCs? Would a Labour PCC find it so easy?

Do the public realise (or care about) this? What are the democratic implications, given the low turnout figures?